GOVERNOR'S M1~ssAGE TO THE GENERAL ASSEMBLY OF GEORGIA JUNE 24, 1914 ATLANTA, GA. CHAS. P. BYRD, STATE PRINTER 1914 GOVERNOR'S MESSAGE TO THE GENERAL ASSEMBLY OF GEORGIA JUNE 24, 1914 ATLANTA, GA, Chas. P. Byrd, State Printer. 1914. GOVERNOR'S MESSAGE STATE OF GEORGIA EXECUTIVE DEPARTMENT Atlanta, June 25th, 1914. To the General .A sse1nbly: I rejoice with you in the general prosperity which has blessed the State during the past year. Since our last session the people have enjoyed the favors of a generous Providence. Their crops have been bountiful, their industries have flourished to a degree hitherto unknown. The farmer, the merchant, the manufacturer, has utilized with ceaseless energy his opportunities, unrestrained in effort by the hampering effect of unwise Jaws. rrhe schools and in- stitt1tions of learning are giving to the children and youth the keys of knowledge and providing them with that equality of opportuity which is all the worthy can demand. And more important than all, the Church in every community is teaching the lessons of Him upon obedience to whose statutes rests the welfare of all nations. You are entitled to the thanks of a great constituency for the achievements of the session of 1913'. You did not multiply laws, but with courage and intelligence met and solved problems, not of your own creation, but which affected the honor and fair name of Georgia. 3 As an aid in the exercise of the suffrage, you provided a permanent registration system which will remove unnecessary encumbrances in the way of the voter, and at the same time preserve proper safeguards. You made it possible for the farmer, often remote, to mail or send his taxes by his neighbor without risk of disfranchisement. The merchant, the travelling man, in fact, all classes, occupied with the affairs of business, are placed on an equal footing with the professional politician who never forgets the last day for registering. You provided not only for the present, but for the future in the education of the children, and for the affiicted in the institutions, and recalling the past and our obligations to those who cheerfully imperiled their all in behalf of the South, you made provision for the declining days of the Confederate Veterans. },'INANOE. In future years, your body will be distinguished as the debt-paying Legislature. when the dis-honor of repudiation may blight the fair name of other States, you and your descendants may point with pride to the enactment of laws establishing a financial system which paid the debt of the State; made possible the refunding of our bonded indebtedness, rehabilitated our fiscal system, and, above all, gave to people the means of checking expenditures by making the tax levy reflect the amount appropriated by their representatives. Now it will be easy for the people to know what appropriations their agents are making. Any condition which permits concealment, or interferes with a ready understanding by the principal of the actions of the agents is indefensible. 4 I have seen a Constitutional amendment sub- mitted to the people involving an extra annual ap- propriation of half million dollars, without provision being made for raising the money, and so arranged as to conceal the necessity for an extra revenue. However worthy the cause, such legislation is in- defensible. The Comptroller-General, in his report of 1913, said: ''In other words, tho entire appropriations for the year 1913, exclusive of common schools and pensions, could be met by a tax levy of about one- third of one mill." In his report for 1914, he de- clares that, exclusive of common schools and pen- sions, all of the appropriations could be met by a tax levy of about one-half of one mill. vVho would wish to cut those two items of public expenditure and if any one did wish to lessen them, who will say the people will permit it 1 '\Vith a deficit of over one million dolJars and with appro- priations exceeding the revenue, how could you cut from items other than common schools and pensions enough to equal the deficit? For 1913, the total raised from the tax levy on property was $4,300,000, and leading items of ex- penditure were as follows: Public Schools, ---------------$ 2,550,000 Pensions, ____________________ 1,180,000 State Sanitarium, ------------- Public Debt, _______________1__ I~egislative Expenses, _________ 550,000 378,000 66,000 Sum Total, _______________$ 4,724,000 This did not include the Blind Asylum, the School for the Deaf, the salaries of the State Honse officers, .Judges of the Supreme Court, and other institutions. 5 It is easy to obtain applause by general declamation against expenditure, but it is much easier to obtain execration by attacking any one of the items of expenditure named above. There are those who would increase popular appropriations and vote to repeal revenue tax acts, but such a course cannot commend itself to any honest thinking citizen. The laws of our State provide that the widows' property may be sold under foreclosure to pay her debts. Should not the State pay its own 1 It may not be popular for the time, but the people cannot be long mislead, will recognize its justics and wisdom. No legislator or officer likes to tax, and the people may well understand that when he does, it is simply under a solemn sense of duty, in the performance of his sworn obligation. TAX LEGISLATION. You were faced with a deficit beginning about 1912, when the appropriations exceeded the revenue $427,000. In 1913, the added excess was $349,000, and in 1914, as estimated by the Treasurer, $313,000. Prior to this time the working balance had been exhausted. The tax rate being limited to five mills prior legislators had exhausted the amount collectable: The State was growing. 'l'he teachers were going without their pay, and the Veterans dying before getting their pensions. 'fhe Governor was kiting in order to maintain the State's institutions and borrowing money to the limit to satisfy current obligations. The people were unwilling for you to cut the great items of expenditure. what were you to do7 With an ability and fearlessness that entitled you to the ever-lasting admiration of the State, you 6 took the task up in full knowledge of the mis-construction and criticism to which you would be subjected, and succeeded in a statesmanlike manner in rendering to the people as splendid a service as ever they received from public officers. You recognized that though corporations are necessary to development and enterprise and should not be oppressed by harsh measures, they received special governmental privileges for which they should pay. The amounts they had been contributing were small in comparison to what other States were re- ceiving, and you doubled their occupation tax. I have heard no complaint from that source. A legitimate source of revenue to all States is an inheritance tax. The right to one's property during life has always been recognized as inherent and fundamental, but to dispose of it after death is a privilege granted by the State. Georgia had never utilized this source of revenue. You passed a conservative law providing for an inheritance tax, which will not only be productive of large income, but will have moral effect in disclosing for taxation much invisible property. Finally, recognizing that many were not bearing their share of the common burden, while many were contributing too much, you passed the Tax Equalization Bill. I believe no better or more necessary law was ever passed. Its only dang;er consists in being misunderstood. It may be improved. Time and experience will disclose its imperfections. But who can criticise a law which in simple terms provides for the honest levying of taxes and that burdens shall be equally borne? 7 It provides that personalty shall pay alike with land, and means are afforded for accomplishing this result. I am informed that this year's returns will be most conspicuous in an immense increase in personalty, due to this and the inheritance tax law. There are no new features of taxation engrafted in the Equalization Tax Act. The Act only emphasizes what has always been the law in Georgia, that all property should bear its part of the expenses of government, and that the tax-payers should equally bear their respective burdens. There can be no valid objection urged to these two propositions. Land cannot escape the notice of the taxing officers, while property in the form of invisible securities can be readily concealed. The main purpose of the Tax Law is to reach invisible property, and that it bear its part of the common burden. Every new do11ar put on the digest to that extent increases the volume of property taxed, and will result in lowering the tax rate, greatly to the benefit of the landowner, who could not, if he were disposed, conceal his property from taxation. The landowner is especially interested in the new Tax Law and ought to warmly advocate it, if for no other reason than that of self-interest. It is not intended that the law shall be inquisitorial, but that it shall provide means for disclosure when the citizen who mainly uses the Courts for the collection of his debts flagrantly shirks his duty at contributing to their maintenance. In passing this Act you recognized that in multitudes of instances much land was not given in at all, and my information is that a large part of the increase this year comes from return of land which had not been upon 8 the tax books. what landowner can complain if he and his neighbor owning property of equal value be required to pay the same amount 1 If the one who has been derelict pay his part, his neighbor will have to pay that much less. In many instances which have come u~der my observation, the returns of one citizen of a county have been reduced and those of another raised. The purpose is equality and justice. what true Georgian will complain if he and his fellows, say in Dade County and in Glynn are treated alike? This Tax Act will inevitably lessen the burden of the small property owner who values his limited property and returns it accordingly. It is the owner of large property who will be the sufferer from confiscatory tax laws, which will have birth when the deficit in the Treasury has become larger, and the absolute necessity will be recognized for immediate hasty action by the people and the Legislator. It is far better to make provision for the coming flood by opening an easy avenue of relief, rather than to await its destruction of the entire embankment with the devastation that will follow. In the bill which was passed nearly 25 years ago, there was no method provided for equalization between the counties, and in consequence there was a fierce competition between them to see which could return the property at tho lowest figure. It has been suggested to me in this connection that if the date of return of taxable property was changed from January 1st to January 10th, the debtor would be enabled to satisfy his obligations and such plan would meet with the approval of the peo- 9 ple of the State. This suggestion comes from rural communities and if you think it wise I trust it may be put in the form of a law. The action of Judge Hart in performing his duty as Tax Commissioner has warranted the commendation you saw fit to pay his appointment at the last session. A land owner, in sympathy with the people of his State, he may be trusted to execute the law without harslmess and in full spirit of exact justice. It is pleasing to know that Governor Stuart, of Virginia, unanimously elected Governor of that State, practically commended in his message the very law you have passed. ECONOMY. One strenuous objection to the passage of the law has been the feeling that the Legislature would spend any amount fonnd in the rrreasury. My experience of seventeen years in the Legislature and my knowledge of the hw load me to prophesy that this Act will not only be productive of great economy, but in arousing the civic virtue and patriotism of the people, will so emphasize the necessity of their watching expenses that henceforth no appropriations will be made which the people with full understanding will not approve. The Constitution provides that no appropriations can be made excepting upon a call of the roll, and this requirement was adopted in order to check legislative extravagance and to give the people an opportunity to see how their representative voted in matters of appropriation. So many appeals are made for money and for so many laudable purposes it is hard to resist them. 10 It is easy for the Legislator to glow with personal pride as he expends the taxpayer's money and receives the plaudits of the beneficiaries and the press. Allow me to urge that you make no appropria- tions at this session other than those absolutely necessary. Any amoul).t you appropriate will increase the deficit already existing. I earnestly submit that duty viewed from an angle cannot require you to give that which you have not. Such action is to be disapproved in the citizen and condemned in the legislator. It is hypocritical to favor economy in general terms and at the same time increase the deficit already existing by spending money not in the Treasury. To appropriate more than the revenue is indefensible, and you can make this answer to the appeals of all institutions: '' To be just before being generous is a cardinal maxim of force in legislation as well as in law." One of the principal a,rguments in favor of the Tax Equalization Law is its tendency to force economy. So long as the tax rate is five mills and limited to that amount the legislator is tempted to vote for every popular appropriation, with the knowledge that his constitutent cannot know that he is spending more money than the revenue. The expenditure is not reflected in the tax rate. But when the tax rate is cut below the five mills, then no legislator dare raise it without giving a strict accounting to the tax payer. I believe that next year the rate will he re- duced below five mills. The people ought not to pay the entire deficit in one year which has accumulated in several years. But with property on the tax books which has never been returned, and with rigid economy practiced by the Legislature for a short 11 time, the rate should be reduced to three mills, with the certainty that the legislator will be no longer tempted to appropriate beyond the State's ability on the one hand, and cut the revenue on the other hand. The representative who dares to do his duty in opposing extravagance ":ill receive the commendation and support of his people. I commend to your careful consideration the report of Comptroller-General wright, and call your attention to the compliment his figures pay you for keeping the expenditures below those of preceding years. REFUNDING THE STATE BONDS. On May 1st, 1915, there will come due $227,000 of bonds of the State, and on July 1st, 1915, wiU come due $3,300,000 of bonds. Provision must be made at this session for refunding these obligations. We will have in the Treasury from the sale of the North-Eastern Railroad, payable in November, 1914, $153,812.50, which must be utilized in taking up these bonds. I think all the bonded indebtedness falling due in 1915 should be consolidated. Appropriate arrangement may be made by the State for carrying the bonds due in May until the first of July. For these bonds falling due in 1915, there is no sinking fund. For the remainder of the bonded indebtedness aggregating $3,000,000, a sinking fund of $100,000 a year is provided, for the retirement of the. public debt. Therefore, in 1945, practically the only out-standing bonded indebtedness of the State will be that falling due in 1915, for which you must make provision. I do not think it fair or right at this time to make our citizens pay more than the $100,000 a year to 12 the retirement of the public debt. The indebtedness was incurred largely in the construction of the W. & A. Railroad, which is an inheritance our children will enjoy, and it will lessen their burdens. Our institutions in this growing State must be taken care of, and they should not be cramped nor the people burdened unnecessarily by attempting to provide an additional sinking fund. In addition, I find that 30-year bonds will sell at a higher price than serial bonds. Purchasers of bonds generally desire to make a permanent investment without the necessity of frequent change, and all the financial authorities agree that a 3'0-year bond can be sold to better advantage. In addition, when these bonds become due, the sinking fund of $100,000 a year may be continued, which makes the burden of the tax payer easy. The Governor should be given the power to obtain in his discretion a short time loan for the purpose of caring for these bonds, for the reason that in cases of financial depression or panic, it may be inadvisable to sell the bonds when they come due. Sister States found it necessary to follow this procedure last year, and they preferred to pay practically 7 per cent., rather than put the bonds upon the market at tremendous sacrifice. I recommend that the Governor be authorized to offer the bonds bearing not more than four and onehalf per cent. interest at not less than par, with the right to advertise for bids in his discretion and 'to reject any and all bids, and that your Act be so flexible as to allow not only proper adjustment but also such discretion as may meet the exigencies of the situation at the time the bonds are to be sold. 13 AuTOl\'.IOBILE TAXES. The State Treasurer has reported to me that there is in the Treasury $79,000 arising from the Automobile r:L1ax, which you provided by Act of 1913 should be distributed to the counties in proportion to the mileage of the roads in these counties, as shown by the Census of the United States. Federal authorities have made no record of this mileage, and therefore tho distribution under the plan contemplated in the Act was impossible, and the Attorney-General held that the money should be kept in the Treasury awaiting your direction. OFFICIAL BONDS. I beg to ask your especial consideration of the Comptroller-General's report regarding the decision of the Supreme Court which holds unconstitutional the law allowing that officer to issue executions for amounts due the State by Tax Collectors. While justice should be done the official, a hearing in accordance with the decision of tho Supreme Court can be allowed him, and at the same time relieve the State from entering into protracted litigtion w1th consequent deprivation of her revenue. I suggest that your appropriate committee take this matter up at once. MILITARY DEPARTM.ENT. Since the last session of your Honorable body I have had brought before me in acute form the relation existing between the National Guard of Georgia and the ,ar Department at vVashington. By statutes embodied in sections 1361, 1362 and 1363, second volume of the Code 0f Georgia, the office of Adjutant-General and Quartermaster-Genera] are 14 established, each with rank of Brigadier-General. Code sections 1367 and 1368 give general authority to the Governor aS' Commander-in-Chief regarding the numbers and grades of the officers. The War Department at Washington issued an order requiring in effect that the QuartermasterGeneral in Georgia should have the rank of Major. The failure to comply with the order was visited with the penalty that the Quartermaster~Genera1 would not be recogni~ed for the purpose of receiving arms, equipment, etc., nor would he receive pay during manoeuvers. I asked if this order could be suspended as to Georgia until the Legislature could meet and dea1 with the subject, as I maintained that obedience to the laws of Georgia was a superior duty and more binding on me than the orders, of the ,ar Dei-mrt- ment. This suspension was declined, unless I promisen. to use my influence as Chief Executive with the Legislature to repeal legislation conflicting with the orders of the War Department. This I declined to do, and hence I designated the Adjutant-General to receipt for equipment until the subject could be brought to your attention. Perhaps it may he the part of practical wisdom to adapt the office of Quartermaster-General to the grade required in the regular army, in order that our National Guard may receive the support of the Federal Government, as provided by its laws. But I believe it should be with the strict heed that the National Guard of Georgia shall always owe first allegiance to the State and subject to the order of her Governor as paramount authority. The National 15 Guard is ready in time of national peril to perform the duties of a soldier against a foreign enemy, and the Government should be generous with it and liberally support it on these terms. Its members spend time and money and make a tremendous sacrifice in its service. But I view with disapproval the growing tendency to militarism, with a large standing army under direct control of one man in ,Vashington. It is not difficult to suppose an occasion when such a force under the control of some one possessed of audacity, ambition and courage, might make it a menace to our Government and its institutions. I shall gladly submit the correspondence to such committee as you may appoint to consider the matter and will render them such aid as may lie in my power. ScHOOL BooKs. The State Board of Education had under consideration the adoption of school books as provided by law, and performed its duty, in accordance with the directing statutes. They could not find a book on Civil Government meeting their approval. Therefore, they tentatively adopted a book for the period of 12 months, under the Act of 1913, with the purpose of requesting the Legislature to authorize it to have a book written and published for use in Georgia under the supervision of the Department of Education. I commend for consideration this request of the State Board of Education. INDETERMINATE SENTENCES. Under the existing laws there is immense latitude given to Judges in the imposition of sentences. 16 The punishment may be from one to twenty years in the penitentiary in many cases. It is difficult to declare why a man is sent four years instead of five or seven years instead of six, and yet one year is a long period to serve. The slightest incident might make the individual Judge, however good, vary the punishment at different times in the identical case. I submit to you whether it would not be more consistent with justice to provide that the Judge may impose a sentence between. certain limited periods and allow the good behavior of the convict to determine the length of the imprisonment after the minimum sentence has been served. This relieves the Governor of much work under the parole act and places the imposition of punishment where it belongs, with the Courts. PRISON FARM. The Prison Commission finds it difficult to meet its obligations in view of its limited appropriations, and this difficulty is increased by an abuse to which I desire to call your attention. In many cases Courts will sentence a man to the Prison Farm for a few months' service, and under the law the Prison Commission must send a guard for him, pay the transportation to the Prison Farm, and when the term is completed, pay the return transportation of the convict. For transportation alone the Prison Commission spends annually $10,000. It seems to me that in cases where the sentence is for a short period either the County should pay the expense of transportation or the sentence should not be to the1 Prison Farm. 17 PRINTING. The State Librarian calls my attention to a rapidly increasing accumulation of publications in the basement of the Capitol, largely resulting from statutes requiring the printing of volumes in excess of what are needed. The available space in the Capitol is practically consumed, and thousands of volumes and manuscripts are lying there deteriorating! each year and practically of value to no one. It would be an immense saving to correct this condition, and I request that you do investigate and by appropriate legislation correct this inexcusable waste. MILITARY DEBTS. In the Augusta strike trouble the militia incurred an indebtedness with merchants of that city which should have been paid over a year ago. Where indebtedness of this character has been incurred the obligation should be satisfied at once. I suggest that the exact amount be ascertained by your appropriate committee and provision be made for immediate payment. PRISON DEPARTMENT. Time has demonstrated the wisdom of placing the convicts upon the roads. From the standpoint of humanity as well as punitive effect, I think no better disposition could be made of those who have violated the laws of the land and placed upon the people the burden of court houses, jails and pensions. Practically 80 per cent. of the convicts are negroes. Before the War there was rarely a case of tuberculosis among this population, because they slept in log cabins, which admitted the fresh air. 18 Now consumption is most prevalent among them, and working upon the roads in the open air is beneficial from the standpoint of health and returns to society in general some compensation for the expense of their conviction. Of course, the highest humanity should be observed in the treatment of convicts. Cruelty, neglect, improper food, unreasonable service, insufficient clothing, lack of sanitary provision, should not be countenanced. Any cruelty to even the most debased should be met with the severest punishment. Yet I am not in sympathy with that idea which would provide comforts and luxuries to the murderer, the burglar and the other violator of the law denied to the honest citizen. There are thousands of honest parents in Georgia who find it difficult to provide their children with sufficient apparel to keep them warm in winter. They learn their lessons by the dim light of a pineknot fire, and as soon as1 opportunity arises go forth into life to struggle for bread. They are not provided with an education in trades, but must meet the problems facing them with the small equipment that poverty can furnish. It hardly seems consistent with justice that the privileges of trade education shall be granted only to the criminal, while the honest are deprived of it. I do not believe the struggling head of a family should work longer hours and make more s'acri:fices to give facilities to the convict which are not granted to his own children. Especially is this the case when the average age of the convict would be between 25 and 30, and 80 per cent. being negroes having been in the habit of making their living by manual labor. 19 In addition, it is not fair to create competition between convict labor and free labor. The honest merchant and artisan should he given every encouragement to maintain and support those dependent upon him, and there is no better citizen than he. The making of good roads is a trade in itself, and is far healthier than employment in mines, with their accompanying hardships. HIGHWAY COMMISSION. In this connection, I beg to call your attention to my preceding recommendations in regard to n highway commission. The Prison Commission has provided an engineer to visit roads and solve technical problems. It is hard to exaggerate the amount of waste resulting from the improper supervision and maintenance of highways. Bills are pending in Congress for the purpose of aiding the various States in the construction of good roads, and these bills generally provide for expenditures of these contributions through Highway Commissions. The Commission might be created without the necessity for extra expense by utilizing the engineer already supplied h:7 the Prison Commission, nnd the Professor of Civil Engineering nt the University of Georgia, and the Professor of a similar department at the Georgia School of Technology. Their suggestions and advice would be invaluable and the seryice would be economical. Any plan, accomplishing the same result, would be equally satisfactory. "'\Vhile the building of highways from county site to county site is beneficial to them, the great majority of the people of other roads should not be 20 forgotten. Along these roads is the path of the Rural ]7 ree Delivery, and in proportion as they can be traveled rapidly, the facility for distribution of mail to those who live in the country is increased. It is impossible to over-rate the benefits resulting in the shape of education and increased joy of living that arise from this great privilege. As far as practicable the roads over which mail is delivered should be public roads. The wisdom of the law providing for the work ing of convicts on the highways is further demonstrated in the flexible provision made for the smttll and less wealthy counties of the State. It is impossible for many of them to utilize their own convicts except at prohibitive cost, and hence the feature of exchange was wisely included. INDUSTRIAL TRAINING SCHOOL FOR WAYWARD GIRLS. I beg to report to you that in accordance with law I declared on June 20, 1914, the Industrial Schoo] for wayward Girls, which was created by you at the last session, open for the reception of those entitled to its privileges. Fulton County made the donation of the land, which is worth many thousands of dollars. The Board of Trustees appointed in accordance with your direction represent the various sections of the State, and there is no board of higher pers-onnel than this. While the segregation of the wayward girl from other criminals is demanded by the loftiest humanity, at the same time the management of the institution must always be accompanied by sanity as well as sympathy. Tlhere could be no greater crown upon the State 21 than the reformation and reclamation of wayward girls. The problem has always been, and is, a most difficult one. \iVhen the inmate is not subject to reformation and proves unresponsive to the efforts in her behalf, she should not be permitted to utilize this school as a place for recuperation until she elects to leave and live a vicious and profligate life. Reasonable work is the most wholesome of all corrections, and the purpose of the creation of this school will be largely effectuated if these inmates are made content with the rewards of industry. This institution is an experiment in Georgia, and is entitled to the earnest sympathy of the good people of the State, but the expenditures should be measured by the progress achieved. At no time would it be justifiable to make a contrast between the honest hard-working girl and the vicious one living in luxury and idleness and supported by the State. While only $20,000 was appropriated to this institution it must be remembered that more than four million dollars of taxable values are required to produce this amount. The constitutional limit is five mills and collection costs 6 per cent. I desire to call your attention to a discrepancy between the books of the Treasurer and the Comptroller-General arising from the law authorizing the Department of Agriculture to draw money directly from the Treasury. This prevents a balance between the books of the Treasurer and ComptrollerGeneral in the fiscal system of the State. I think this should be remedied by legislation, and request that the matter be investigated by appropriate committees of your body. 22 AUDITOR. I again beg to call your attention to the necessity for the creation of State Auditor. So far as I -am aware, Georgia is the only State which has no official whose duty it is to examine the various books of the State, with reference to the expenditure of money appropriated by the Legislature. It is impossible for the Governor to keep check on the several institutions or determine their requirements. No money should be drawn from the Treasury excepting when absolutely necessary. So long as the money lies in the Treasury the State draws 2 per cent. interest, but if it lies in bank to the credit of any department the State receives no interest, and its ability to borrow in time of need is lessened. There can be no wiser provision than constant and efficient checking of all public expenditures. The recommendations of such an officer to the appropriation committees of the Legislature would be invaluable and the money spent would be far more than compensated by increased economy. PAROLE LAW. In a large proportion of cases in which I have granted clemency it has been upon the recommendation of the Judge and Solicitor-General, who have been convinced that justice would be served by the exercise of executive clemency. The parole law is as binding upon the Governor as any other law. It is not the number of cases in which executive clemency is exercised, but the character of them, which merits approval or criticism. We have con- 23 servation of lands and forests and material r0sources, but the conservation of human beings is the most essential of all. So long as the effect of punishment is preserved the release and reclamation of the criminal are in accordance with the demands of humane civilization. Many are in the convict camp who would make good citizens if released, and it requires the exercise of painstaking care and discretion to wisely exercise the power of the Governor as vested in him by the Constitution. I submit herewith in accordance with law those cases in which I have exercised clemency. OFFICIAL REPORTS. I beg to call to your attention the reports of the various departments and institutions of State. The heads of these departments are familiar through experience with needed corrections, and I commend them to your careful investigation. CONTINGENT FUND. There are many expenses which by custom: have bE;ien paid from the contingent fund. I think each department should pay its own expenses of opera- tion and the contingent fund be utilized only in cases of necessity where provision could not be made. In this way economy would be encouraged and the needs of the departments be known to the Legisla- ture. w. & A. RAILROAD LEASE. The Committee appointed in accordance with a resolution adopted by you at the session of 1913, with power to investigate and report regarding the leasing of the Western & Atlantic R. R. will make 24 its recommendation. Composed as it is of men of the highest patriotism and experience, I commend their recommendation to your serious consideration. It is needless to comment on the permanent importance of this question and the extent to which its correct disposition will affect the entire State. LAND TITLES. The National Government is interested in the matter of Rural Credits, and legislation will likely be passed providing for loans to farms at rates that will permit investments in lands, with consequent ad- vantage to the agricultural interests of our State. An essential prerequisite to such a plan is security in land titles. The law should provide an easy and inexpensive method of affording evidence that the titles of agricultural lands are good and unincumbered. In many cases it is impossible to give this assurance in Georgia to-day. While the Torrens System may not be practicable in Georgia, I com- mend the subject to your consideration, in order that this State may be prepared to take advantage of such litigation as may be passed. Congress has recently passed a law allowing loans on land as secur~ ity, and a large part of the expense may be eliminated by providing a better system of land titles, with a consequent reduction of expense to the bor- rower. CoNCL usrnNs. I shall from time to time present such other com- munications as conditions may require. Governor. 25 EXHIBIT A. Report of pardons, commutations, paroles, and respites granted since June 28, 1913. PARDONS. ,JUAN FowLER: Superior Court of Rabun County; Fall term, 1896; voluntary manslaughter; two years in the penitentiary; disabilities removed September 27, 1913'. Applicant served his time with good behavior as shown by his discharge certificates. Since that time, for nearly fifteen years, he has lived as a good citizen. BuNK ADDISON: Superior Court of Miller County: larceny: disabilities removed October 8, 1913, on recommendation of Judge of the City Court and nearly all of the county officers. CHARLEY LoNG; City Court of Atlanta, October term, 1913; larceny from the house; $50.00 fine or ten months on the chaingang; pardoned November 18, 1913, on recommendation of Judge and Solicitor. The showing made clearly shows a miscarriage of justice. WALTER PHILLIPS; Superior Court of Muscogee County; November adj. term, 1903; simple larceny; twelve months on chaingang, or $100.00 fine; disabilities removed February 11, 1914, on recommendation of officials and leading citizens of Columbus. FRANK S. VAN CEISEN; Superior Court of Chatham County; October term, 1913; malpractice in 27 office; $500.00 fine, or twelve months on the chaingang; disabilities removed March 20, 1914, on recommendation of Judge, Solicitor General, county officers, and members of the General Assembly from Chatham County, because of the fact that applicant has carried out the sentence of the Court and is now mortally ill and not expected to live at most more than a month. vV. 0. BROWN; Superior Court of Chatham County; November term, 1912; embezzlement; one year; disabilities removed March 23, 1914, after he had served sentence with good record and since his discharge has been filling a responsible position in private life and his conduct has been such as to bespeak good citizenship in future. WALTON MARTIN; Superior Court of Laurens County; July term, 1907 ; larcency from house; $50.00 fine; disabilities removed March 25, 1914. Applirant pleaded guilty to the offense of larceny from the house, and was fined in the F'ebruary term, 1908, of Laurens County Superior Court. Since that time he has been regularly employed, and has contributed the large part of his earnings to support of his widowed mother. JORN H. HARTLEY; Superior Court of Bibb County; November term, 1911; manslaughter; eight years in the penitentiary; pardoned May 28, 1914. Ought never to have been ronvicted. Killed deceased in protection of fireside. DAVID G. BLOOM; Superior Court of Muscogee County; September term, 1913'; unlawful shooting; fine of $100.00; pardoned I\Iay 29, 1914, on recommendation of ,Judge, Solicitor General and several of the county officers. 28 PARDON GRANTED AS PER rl1ERMS OF THE PAROLl~ LAW. (Note.-The following case was reported in detail as parole, pardon order being promulgated in compliance with tho statutes under which he was paroled by Acting Governor, .Tohn l\L Slaton, in 1912.) A. Y. CHASTAIN; Grady County; attempt to murder; pardoned, l\fay 16, 1914. PAROLES. ToM SPEER; Superior Court of Pike County; Spring term, 1896; murder; life imprisonment; paroled August 5, 1913? for statutory reasons and doubt as to his guilt. CLIFFORD YOUNG; Superior Court of Effingham County; November term, 1901; manslaughter; twenty years in the penitentiary; paroled September 11, 1913, for statutory reasons and in view of the fact that defendant had served many years longer than the average term for manslaughter. DocK BALDWIN; Superior Court of Ware County; Spring term, 1895; murder; life imprisonment; paroled September 18, 1913, for statutory reasons and on recommendation of the court officials, including the Judge. RoMIE "\VILLIAMS; Superior Court of Tift County; July term, 1906'; manslaughter; ten years in the penitentiary; paroled September 17, 1913, for statutory reasons and as a reward for giving alarm when several prisoners tried to escape. SAM YouNG; Superior Court of Miller County; October term, 1898; murder; life imprisonment; paroled October 7, 1913, for statutory reasons and because he had served nearly fifteen years; the offense not being one of extreme character. 29 J uDGE FANT; Superior Court of Franklin County; March term, 1910; manslaughter; fifteen years; paroled October 10, 1913, for statutory reasons and evidence showing the offense to be involuntary manslaughter as Court of Appeals intimates. MosE HousTON; Superior Court of Chatham County; March term, 1901; murder; life imprisonment; paroled October 15, 1913, for statutory reasons and his youth, being only fourteen years old when the crime was committed. Prior to the offense his record was good and was good in the penitentiary. AmsTRIDE, FRANZONI; Superior Court of Pickens County; Spring term, 1912; manslaughter; ten years paroled October 22, 1913, for statutory reasons and because circumstances showed defendant was not a bad man, but killed Hugo Passani in defense of his daughter. WILL JoHNSoN; Superior Court of Walton County; August term, 1909; manslaughter; ten years; paroled October 28, 1913, for statutory reasons. JIM PoPE; Superior Court of Dougherty County; May term, 1910; attempt to murder; eighteen months and seven years; paroled November 13, 1913, for statutory reasons and because it was clear that the combined sentences were excessive. ARTIS WILLIAMS; Superior Court of Harris County; April term, 1909; manslaughter; twenty years; paroled November 28, 1913', for statutory reasons and on recommendation of Judge and Solicitor General. WILLIAM HERRINGTON; Superior Court of Fulton County; May term, 1911; attempt to murder; five 30 years; paroled December 18, 1913, for statutory reasons and on recommendation of Judge and Solicitor General. GEORGE Ronny; Superior Court of Calhoun County; December term, 1902; attempt to wreck train; life impr:isonment; paroled December 27, 1913, for statutory reasons and because of his youth. He was between eleven and thirteen years of age when crime was committed. J. W. GARNETT; Superior Court of Richmond County, May term, 1911; burglary; seven years; paroled December 29, 1913, for statutory reasons and on recommendation of Judge and Solicitor General and all Court officials of Richmond County. 1CHARLIE LEAK; Superior Court of Brooks County; November term, 1890; murder; life imprisonment; paroled January 2, 1914, for statutory reasons an